1. COU CIL OF
THE EUROPEA U IO EN
Council Conclusions on a strategic framework for European
cooperation in education and training
("ET 2020")
2941th EDUCATIO , YOUTH A D CULTURE Council meeting
Brussels, 12 May 2009
The Council adopted the following conclusions:
"THE COUNCIL OF THE EUROPEAN UNION,
RECALLING
the endorsement by the March 2002 Barcelona European Council of the 'Education and Training
2010' work programme which - in the context of the Lisbon Strategy - established for the first time
a solid framework for European cooperation in the field of education and training, based on
common objectives and aimed primarily at supporting the improvement of national education and
training systems through the development of complementary EU-level tools, mutual learning and
the exchange of good practice via the open method of coordination;
and ACKNOWLEDGING
that cooperation under the aforementioned work programme, including the Copenhagen process and
initiatives in the context of the Bologna process, have led to significant progress being made -
notably in support of national reforms of lifelong learning, the modernisation of higher education
and the development of common European instruments promoting quality, transparency and
mobility - but that substantial challenges still remain, if Europe is to achieve its ambition to become
the most competitive and dynamic knowledge-based economy in the world;
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2. EMPHASISES that
1. Education and training have a crucial role to play in meeting the many socio-economic,
demographic, environmental and technological challenges facing Europe and its citizens
today and in the years ahead.
2. Efficient investment in human capital through education and training systems is an essential
component of Europe's strategy to deliver the high levels of sustainable, knowledge-based
growth and jobs that lie at the heart of the Lisbon strategy, at the same time as promoting
personal fulfilment, social cohesion and active citizenship.
RECOGNISES that
1. While valuing European diversity and the unique opportunities which this affords, and while
fully respecting the Member States' responsibility for their education systems, an updated
strategic framework for European cooperation in education and training - building on the
progress made under the 'Education and Training 2010' work programme - could further
enhance the efficiency of such cooperation and provide continuing benefits and support for
Member States' education and training systems up to the year 2020.
2. Education and training have made a substantial contribution towards achieving the long-term
goals of the Lisbon strategy for growth and jobs. In anticipation of future developments with
this process, efforts should therefore be maintained to ensure that education and training
remain firmly anchored in the broader strategy. It is also essential that the framework for
European cooperation should remain flexible enough to respond to both current and future
challenges, including those arising under any new strategy after 2010.
NOTES WITH INTEREST
the communication from the Commission to the European Parliament, the Council, the European
Economic and Social Committee and the Committee of the Regions on An updated strategic
framework for European cooperation in education and training1.
AGREES that
1. In the period up to 2020, the primary goal of European cooperation should be to support the
further development of education and training systems in the Member States which are aimed
at ensuring:
(a) the personal, social and professional fulfilment of all citizens;
(b) sustainable economic prosperity and employability, whilst promoting democratic
values, social cohesion, active citizenship, and intercultural dialogue.
2. Such aims should be viewed in a worldwide perspective. Member States acknowledge the
importance of openness to the world at large as a prerequisite for the global development and
prosperity which - through the provision of excellent and attractive education, training and
research opportunities - will help the European Union achieve its objective of becoming a
world-leading knowledge economy.
1
Doc. 17535/08 + ADD 1 + ADD 2
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3. 3. European cooperation in education and training for the period up to 2020 should be
established in the context of a strategic framework spanning education and training systems as
a whole in a lifelong learning perspective. Indeed, lifelong learning should be regarded as a
fundamental principle underpinning the entire framework, which is designed to cover learning
in all contexts - whether formal, non-formal or informal - and at all levels: from early
childhood education and schools through to higher education, vocational education and
training and adult learning.
Specifically, the framework should address the following four strategic objectives (detailed
further below):
1. Making lifelong learning and mobility a reality;
2. Improving the quality and efficiency of education and training;
3. Promoting equity, social cohesion and active citizenship;
4. Enhancing creativity and innovation, including entrepreneurship, at all levels of
education and training.
4. The periodic monitoring of progress towards a set objective provides an essential contribution
towards evidence-based policy making. The strategic objectives outlined above should
accordingly be accompanied during the period 2010 - 2020 by indicators and by reference
levels for European average performance ("European benchmarks"), as set out in Annex I to
this document. Building on the existing benchmarks, these will help to measure at European
level the overall progress made and to show what has been achieved.
■ Strategic objective 1: Making lifelong learning and mobility a reality
The challenges posed by demographic change and the regular need to update and develop
skills in line with changing economic and social circumstances call for a lifelong approach to
learning and for education and training systems which are more responsive to change and
more open to the wider world. While new initiatives in the field of lifelong learning may be
developed to reflect future challenges, further progress with ongoing initiatives is still
required, especially in implementing coherent and comprehensive lifelong learning strategies.
In particular, work is needed to ensure the development of national qualifications frameworks
based on relevant learning outcomes and their link to the European Qualifications Framework,
the establishment of more flexible learning pathways - including better transitions between
the various education and training sectors, greater openness towards non-formal and informal
learning, and increased transparency and recognition of learning outcomes. Further efforts are
also required to promote adult learning, to increase the quality of guidance systems, and to
make learning more attractive in general - including through the development of new forms of
learning and the use of new teaching and learning technologies.
As an essential element of lifelong learning and an important means of enhancing people's
employability and adaptability, mobility for learners, teachers and teacher trainers should be
gradually expanded with a view to making periods of learning abroad - both within Europe
and the wider world - the rule rather than the exception. In so doing, the principles laid down
in the European Quality Charter for Mobility should be applied. To achieve this will require
renewed efforts on the part of all concerned, for instance with regard to securing adequate
funding.
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4. ■ Strategic objective 2: Improving the quality and efficiency of education and
training
High quality education and training systems which are both efficient and equitable are crucial
for Europe's success and for enhancing employability. The major challenge is to ensure the
acquisition of key competences by everyone, while developing the excellence and
attractiveness at all levels of education and training that will allow Europe to retain a strong
global role. To achieve this on a sustainable basis, greater attention needs to be paid to raising
the level of basic skills such as literacy and numeracy, making mathematics, science and
technology more attractive and to strengthening linguistic competences. At the same time,
there is a need to ensure high quality teaching, to provide adequate initial teacher education,
continuous professional development for teachers and trainers, and to make teaching an
attractive career-choice. It is also important to improve the governance and leadership of
education and training institutions, and to develop effective quality assurance systems. High
quality will only be achieved through the efficient and sustainable use of resources - both
public and private, as appropriate - and through the promotion of evidence-based policy and
practice in education and training.
■ Strategic objective 3: Promoting equity, social cohesion and active
citizenship
Education and training policy should enable all citizens, irrespective of their personal, social
or economic circumstances, to acquire, update and develop over a lifetime both job-specific
skills and the key competences needed for their employability and to foster further learning,
active citizenship and intercultural dialogue. Educational disadvantage should be addressed
by providing high quality early childhood education and targeted support, and by promoting
inclusive education. Education and training systems should aim to ensure that all learners -
including those from disadvantaged backgrounds, those with special needs and migrants -
complete their education, including, where appropriate, through second-chance education and
the provision of more personalised learning. Education should promote intercultural
competences, democratic values and respect for fundamental rights and the environment, as
well as combat all forms of discrimination, equipping all young people to interact positively
with their peers from diverse backgrounds.
■ Strategic objective 4: Enhancing creativity and innovation, including
entrepreneurship, at all levels of education and training
As well as engendering personal fulfilment, creativity constitutes a prime source of
innovation, which in turn is acknowledged as one of the key drivers of sustainable economic
development. Creativity and innovation are crucial to enterprise development and to Europe's
ability to compete internationally. A first challenge is to promote the acquisition by all
citizens of transversal key competences such as digital competence, learning to learn, a sense
of initiative and entrepreneurship, and cultural awareness. A second challenge is to ensure a
fully functioning knowledge triangle of education-research-innovation. Partnership between
the world of enterprise and different levels and sectors of education, training and research can
help to ensure a better focus on the skills and competences required in the labour market and
on fostering innovation and entrepreneurship in all forms of learning. Broader learning
communities, involving representatives of civil society and other stakeholders, should be
promoted with a view to creating a climate conducive to creativity and better reconciling
professional and social needs, as well as individual well-being.
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5. FURTHER AGREES that
1. In endeavouring to achieve the above strategic objectives and thereby ensure an effective
contribution to national reforms, the following principles should be observed in the period up
to 2020:
(a) European cooperation in education and training should be implemented in a lifelong
learning perspective making effective use of the open method of coordination (OMC)
and developing synergies between the different education and training sectors. While
fully respecting Member States' responsibility for their educational systems and the
voluntary nature of European cooperation in education and training, the OMC should
draw on:
- the four strategic objectives for European cooperation outlined above;
- common reference tools and approaches;
- peer learning and the exchange of good practice, including the dissemination of
outcomes;
- periodic monitoring and reporting;
- evidence and data from all relevant European agencies2, European networks, and
international organisations3;
- making full use of the opportunities available under Community
programmes, particularly in the field of lifelong learning.
(b) European cooperation in education and training should be pertinent and concrete. It
should produce clear and visible outcomes which should be presented, reviewed and
disseminated on a regular basis and in a structured manner, thereby establishing a basis
for continuous evaluation and development.
(c) The Copenhagen process in the field of vocational education and training is an
important aspect of European cooperation under the open method of coordination. The
aims and priorities pursued under this process should contribute to achieving the
objectives set out in this framework.
(d) In order to support Member States' efforts to modernise higher education and develop a
European Higher Education Area, close synergy with the Bologna process should also
be aimed for, in particular with regard to quality assurance, recognition, mobility and
transparency instruments.
(e) Where relevant, cross-sectoral cooperation should be sought between EU initiatives in
education and training and those in related policy areas - particularly employment,
enterprise, social policy, youth policy and culture. With specific regard to the
knowledge triangle, special attention should be paid to the synergies between education,
research and innovation, as well as to complementarity with the aims of the European
Research Area.
2
In particular, Cedefop and the European Training Foundation.
3
.B. Whenever reference to the OECD is made or implied in this text, it is to be
understood that the right of participation of all Member States in the work of that
organisation should be ensured.
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6. (f) Well-functioning cooperation using new, transparent ways of networking is needed not
only between the relevant EU institutions, but also with all relevant stakeholders, who
have a considerable contribution to make in terms of policy development,
implementation and evaluation.
(g) Policy dialogue with third countries and cooperation with international organisations
should be reinforced, thereby providing a source of fresh ideas and comparison.
(h) Where appropriate, financial resources from the European Structural Funds may be used
to enhance education and training systems in accordance with the overall strategic
objectives and Member States' priorities.
2. The success of the open method of coordination in education and training depends on the
political commitment of Member States and on effective working methods at European level.
From this perspective, and with a view to greater flexibility, the working methods used in the
context of European cooperation should be based on the following:
(a) Work cycles: the period up to 2020 will be divided up into a series of cycles, with the
first cycle covering the 3 years from 2009 to 2011.
(b) Priority areas: for each cycle, a number of priority areas for European cooperation
based on the strategic objectives will be adopted by the Council on the basis of a
Commission proposal. The European priority areas will be designed to allow either for
broad cooperation between all the Member States or for closer cooperation between a
more limited number of Member States, in accordance with national priorities. The
priority areas for the first cycle under this new framework are set out in Annex II hereto.
(c) Mutual learning: European cooperation in the aforementioned priority areas can be
carried out by such means as peer learning activities, conferences and seminars, high
level fora or expert groups, panels, studies and analyses and web-based cooperation and,
where appropriate, with the involvement of relevant stakeholders. All of these initiatives
should be developed on the basis of clear mandates, time schedules and planned outputs
to be proposed by the Commission in cooperation with the Member States (see also
paragraph (f) below).
(d) Dissemination of results: to enhance visibility and impact at national and European
level, the outcomes of cooperation will be widely disseminated among all relevant
stakeholders and, where appropriate, discussed at the level of Directors-General or
Ministers.
(e) Progress reporting: At the end of each cycle - and in the case of the first under the new
framework, no earlier than the beginning of 2012 - a joint Council-Commission report
should be drawn up. This will evaluate the overall progress in achieving the objectives
under this framework during the most recent cycle and/or in a particular thematic area
which would be defined by the Commission in cooperation with the Member States (see
also paragraph (f) below). Joint reports should be based on national reports drawn up by
the Member States, as well as on existing information and statistical data. The joint
reports may be developed to include factual analyses of the different situations in
individual Member States, with their full agreement. The joint reports should also serve
as the basis for establishing a fresh set of priority areas for the following cycle.
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7. (f) Monitoring of the process: To promote the delivery of results through the open method
of coordination as well as ownership of the method at both national and European level,
the Member States and the Commission will work closely together in steering, taking
forward and evaluating the process and its outcomes.
3. The strategic framework - including benchmarks and working methods - may be reviewed and
any necessary adjustments made by the Council in the light of any major new developments
in Europe, particularly decisions taken on the EU strategy for growth and jobs beyond 2010.
ACCORDINGLY INVITES THE MEMBER STATES to
1. Work together, with the support of the Commission and using the open method of
coordination as outlined in these conclusions, to enhance European cooperation in education
and training in the period up to 2020 on the basis of the four strategic objectives, the
principles and working methods described above, and of the priority areas agreed for each
cycle (those for the first cycle 2009-2011 being outlined in Annex II hereto).
2. Consider, on the basis of national priorities, the adoption of measures at national level aimed
at achieving the objectives outlined in the strategic framework and contributing to the
collective achievement of the European benchmarks identified in Annex I hereto. Further
consider whether inspiration can be drawn from mutual learning at European level, when
devising national education and training policies.
INVITES THE COMMISSION to
1. Work with and support the Member States - during the period up to 2020 - in cooperating
within this framework on the basis of the four strategic objectives, the principles and working
methods described above, and the benchmarks and agreed priority areas outlined respectively
in Annexes I and II hereto.
2. Examine, in particular through the joint progress reports, the degree to which the objectives of
this framework have been met. In addition, conduct an evaluation during 2010 of the progress
made in achieving the benchmarks adopted under the “Education and Training 2010” work
programme.
3. Conduct work on proposals for possible benchmarks in the areas of mobility, employability
and language learning, as indicated in Annex I hereto.
4. Work with the Member States to examine how to improve existing indicators, including those
on early leavers from education and training, and report back to the Council by the end of
2010 on the extent to which the coherent framework of indicators and benchmarks adopted by
the Council in May 20074 might be adjusted, so as to ensure its coherence with the strategic
objectives under this framework. In this context, special attention should be paid to the areas
of creativity, innovation and entrepreneurship.
______________________
4
Council conclusions of 25 May 2007 on a coherent framework of indicators and benchmarks
for monitoring progress towards the Lisbon objectives in education and training [OJ C 311,
21.12.2007, pp. 13-15.]
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8. A EX I
Reference levels of European average performance
("European benchmarks")
As a means of monitoring progress and identifying challenges, as well as contributing to evidence-
based policy making, a series of reference levels of European average performance ("European
benchmarks") should support the strategic objectives outlined in the above conclusions for the
period 2010 - 2020.
These benchmarks build on the existing ones5 adopted under the "Education and Training 2010"
work programme. They should be based solely on comparable data and take account of the differing
situations in individual Member States. They should not be considered as concrete targets for
individual countries to reach by 2020. Rather, Member States are invited to consider, on the basis of
national priorities and whilst taking account of changing economic circumstances, how and to what
extent they can contribute to the collective achievement of the European benchmarks through
national actions.
On this basis, the Member States agree to the following five benchmarks:
Adult participation in lifelong learning
With a view to increasing the participation of adults in lifelong learning, particularly that of the
low-skilled:
§ By 2020, an average of at least 15 % of adults should participate in lifelong learning6.
Low achievers in basic skills
With a view to ensuring that all learners attain an adequate level of basic skills, especially in
reading, mathematics and science:
§ By 2020, the share of low-achieving 15-years olds in reading, mathematics and science7
should be less than 15%.
5
Council conclusions of 5-6 May 2003 on reference levels of European average performance in
education and training (Benchmarks) (doc. 8981/03).
6
i.e. The percentage of the population aged 25-64 participating in education and training during
the 4 weeks prior to the survey (Eurostat/Labour Force Survey). Benefit can also be drawn
from the information on adult participation in lifelong learning gathered by the Adult
Education Survey .
7
Source: OECD/PISA. (The right of participation of all Member States in such work should be
ensured.)
The relevant indicators will be monitored separately.
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9. Tertiary level attainment
Given the increasing demand for higher education attainment, and whilst acknowledging the equal
importance of vocational education and training:
§ By 2020, the share of 30-34 year olds with tertiary educational attainment8 should be
at least 40%.
Early leavers from education and training
As a contribution to ensuring that a maximum number of learners complete their education and
training:
§ By 2020, the share of early leavers from education and training9 should be less than 10%.
Early childhood education
With a view to increasing participation in early childhood education as a foundation for later
educational success, especially in the case of those from disadvantaged backgrounds:
§ By 2020, at least 95% of children between 4 years old and the age for starting compulsory
primary education should participate in early childhood education.
* * *
In addition, the Council invites the Commission to work further in the following areas:
Mobility
Given the widely acknowledged added value of learning mobility, and with a view to
increasing such mobility, the Commission is invited to submit to the Council a proposal for a
benchmark in this area by the end 2010, focusing initially on physical mobility between
countries in the field of higher education, taking both quantitative and qualitative aspects into
account and reflecting the efforts made and the objectives agreed within the Bologna process,
as highlighted most recently at the Leuven and Louvain-la-Neuve conference10. At the same
time, the Commission is invited to study the possibility of extending such a benchmark to
include vocational education and training and teacher mobility.
8
i.e. The percentage of those aged 30-34 who have successfully completed tertiary level
education (ISCED levels 5 and 6). (EUROSTAT, UOE).
9
i.e. The share of the population aged 18-24 with only lower secondary education or less and
no longer in education or training. (EUROSTAT/Labour Force Survey). Efforts should be
made to improve the quality of data, including by examining the feasibility of using additional
data sources.
10
Communiqué of the Conference of European Ministers responsible for Higher Education,
Leuven and Louvain-la Neuve, Belgium, 28-29 April 2009.
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10. Employability
Given the importance of enhancing employability through education and training in order to
meet current and future labour market challenges, the Commission is invited to submit to the
Council a proposal for a possible European benchmark in this area by the end of 2010.
Language learning
In view of the importance of learning two foreign languages from an early age, as highlighted
in the March 2002 Barcelona European Council conclusions, the Commission is invited to
submit to the Council – by the end of 2012 - a proposal for a possible benchmark in this area,
based on the ongoing work on language competences.11
__________________
11
Council conclusions on the European Indicator of Language Competence (OJ C 172,
25.7.2006, p. 1).
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11. A EX II
PRIORITY AREAS FOR EUROPEA COOPERATIO I EDUCATIO A D
TRAI I G DURI G THE FIRST CYCLE: 2009 - 2011
With a view to achieving the four strategic objectives under the "ET 2020" framework, the
identification of priority areas for a specific work cycle should improve the efficiency of European
cooperation in education and training, as well as reflect the individual needs of Member States,
especially as new circumstances and challenges arise.
The priority areas, as referred to in paragraphs 2(b) and 2(c) in the "further agrees" section above
and detailed below, reflect the need to:
(i) pursue cooperation in areas where key challenges remain;
(ii) develop cooperation in areas regarded as particularly important during this particular
work cycle.
Member States will select, in accordance with national priorities, those areas of work and
cooperation in which they wish to participate in joint follow-up work. If Member States deem
necessary, the work on specific priority areas can continue in subsequent work cycles.
Strategic objective 1: Making lifelong learning and mobility a reality:
Pursue work on :
• Lifelong learning strategies: Complete the process of implementation of national lifelong
learning strategies, paying particular attention to the validation of non-formal and informal
learning and guidance.
• European Qualifications Framework: In accordance with the April 2008 Recommendation of
the European Parliament and of the Council12, relate all national qualifications systems to the
EQF by 2010, and support the use of an approach based on learning outcomes for standards and
qualifications, assessment and validation procedures, credit transfer, curricula and quality
assurance.
Develop cooperation on :
• Expanding learning mobility: Work together to gradually eliminate barriers and to expand
opportunities for learning mobility within Europe and worldwide, both for higher and other
levels of education, including new objectives and financing instruments, and whilst taking into
consideration the particular needs of disadvantaged persons.
12
OJ C 111, 6.5.2008.
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12. Strategic objective 2: Improving the quality and efficiency of education and training:
Pursue work on :
• Language learning: To enable citizens to communicate in two languages in addition to their
mother tongue, promote language teaching, where relevant, in VET and for adult learners, and
provide migrants with opportunities to learn the language of the host country.
• Professional development of teachers and trainers: Focus on the quality of initial education
and early career support for new teachers and on raising the quality of continuing professional
development opportunities for teachers, trainers and other educational staff (e.g. those involved
in leadership or guidance activities.).
• Governance and funding: Promote the modernisation agenda for higher education (including
curricula) and the quality assurance framework for VET, and develop the quality of provision,
including staffing, in the adult learning sector. Promote evidence-based policy and practice,
placing particular emphasis on establishing the case for sustainability of public and, where
appropriate, private investment.
Develop cooperation on :
• Basic skills in reading, mathematics and science: Investigate and disseminate existing good
practice and research findings on reading performance among school pupils and draw
conclusions on ways of improving literacy levels across the EU. Intensify existing cooperation to
improve the take-up of maths and science at higher levels of education and training, and to
strengthen science teaching. Concrete action is needed to improve the level of basic skills,
including those of adults.
• " ew Skills for ew Jobs": Ensure that the assessment of future skill requirements and the
matching of labour market needs are adequately taken on board in education and training
planning processes.
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13. Strategic objective 3: Promoting equity, social cohesion and active citizenship:
Pursue work on :
• Early leavers from education and training: Strengthen preventive approaches, build closer
cooperation between general and vocational education sectors and remove barriers for drop-outs
to return to education and training.
Develop cooperation on :
• Pre-primary education: Promote generalised equitable access and reinforce the quality of
provision and teacher support.
• Migrants: Develop mutual learning on best practices for the education of learners from migrant
backgrounds.
• Learners with special needs: Promote inclusive education and personalised learning through
timely support, the early identification of special needs and well-coordinated services. Integrate
services within mainstream schooling and ensure pathways to further education and training.
Strategic objective 4: Enhancing innovation and creativity, including entrepreneurship, at all
levels of education and training:
Pursue work on :
• Transversal key competences: In accordance with the December 2006 Recommendation of the
European Parliament and of the Council13, take greater account of transversal key competences
in curricula, assessment and qualifications.
Develop cooperation on :
• Innovation-friendly institutions: Promote creativity and innovation by developing specific
teaching and learning methods (including the use of new ICT tools and teacher training).
• Partnership: Develop partnerships between education and training providers and businesses,
research institutions, cultural actors and creative industries, and promote a well-functioning
knowledge triangle.
______________________
13
OJ L 394, 30.12.2006, p. 10.
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